农村集体经营性建设用地现状及入市问题研究*——基于东北三省部分地区调查

党的十八届三中全会提出允许农村集体经营性建设用地入市,与国有土地同权同价,为集体土地流转指明了新的方向。为了了解农村集体经营性建设用地的现状,入市存在的问题,该研究通过全面调查和典型调查相结合以及访谈的方式对东北三省的沈阳市、东港市、哈尔滨市、长春市进行实地调研,其中包括8县(区)、15个乡镇(街道)、164个行政村、33家典型企业。利用数理统计方法,分析东北三省农村集体经营性建设用地现状及存在问题。东北三省农村集体经营性建设用地现状特点为总量不大,单宗面积小;分布零散,主要集中于城乡结合部;隐形流转普遍,缺乏规范性的引导;利用粗放,效益低下。研究结论:农村集体经营性建设用地入市存在缺少法律依据和制度保障、产权不清晰、城乡规划不详细等制度方面的问题以及农村集体经营性建设用地基数不清,流转对象不明确、历史遗留问题较多、潜力有限、村集体对农村集体经营性建设用地入市认识不清等现实方面的问题。修订和完善相关政策法规,建立配套的法律制度、开展农村集体经营性建设用地专项调查和确权登记、建议在东北地区同步宅基地制度改革、按照"尊重历史、承认现实"的原则,协商解决历史遗留问题是有序推动农村集体经营性建设用地入市的重要途径。

STUDY ON STATUS AND MARKET PROBLEMS OF RURAL COLLECTIVE COMMERCIAL CONSTRUCTION LAND

The Third Plenary Session of the Party's Eighteenth put forward that in conformity with the planning and use controls,rural collective commercial construction land was allowed to transfer in the construction land market,with the same land,same right and same price as the state-owned land.In order to understand the status of rural collective construction land and the problems in the construction land market,based on the survey on 8 counties (districts),15 townships (streets),164 administrative villages,33 typical enterprises,such as Shenyang,Donggang,Harbin,and Changchun,etc.,this paper analyzed the status and problems of rural collective commercial construction land in three northeast provinces.The results showed that the rural collective construction land in three northeast provinces were small and scattered in the urban fringe,generally lacked of normative guidance,and had extensive use and low efficiency.The problems of the rural collective commercial construction can be divided into two aspects:institutional problems and practical problems.The former included that the rural collective construction land lacked legal basis and institutional guarantee,the property rights were unclear,and the urban and rural planning was not detailed.And the latter included that the groups of rural collective commercial construction land were countless,the transfer objectives were unclear,the potential was limited,and the village collective's understanding was limit.Finally,it put some countermeasures to promote rural collective commercial construction land transfer in the construction land market,such as to revise and improve relevant policies and regulations,support the establishment of legal system,carry out the investigations and the right registration of rural collective commercial construction land,reform the synchronization homestead system in the Northeast,and solve the history problems according to the principle of "respect history,recognize the reality".